Chemical Management and Control Strategies: Experiences from the GTZ Pilot Project on Chemical Safety in Indonesian Small and Medium-sized Enterprises

Ann. occup. Hyg., Vol. 47, No. 7, pp. 571 575, 2003 2003 British Occupational Hygiene Society Published by Oxford University Press DOI: 10.1093/annhyg/meg085 Chemical Management and Control Strategies: Experiences from the GTZ Pilot Project on Chemical Safety in Indonesian Small and Medium-sized Enterprises M. TISCHER 1 * and S. SCHOLAEN 2 1 Bundesanstalt für Arbeitsschutz und Arbeitsmedizin, Unit Occupational Exposure, Friedrich Henkel Weg 1 25, 44149 Dortmund; 2 GTZ Convention Project on Chemical Safety, Tulpenfeld 2, 53113 Bonn, Germany Received 1 April 2003; in final form 29 June 2003 In 1998 the Deutsche Gesellschaft für Technische Zusammenarbeit (GTZ) launched the Convention Project on Chemical Safety in developing countries. The project aims to support developing countries in the implementation of the Rotterdam and Stockholm Conventions, create human resources and institutional capacities and to demonstrate via pilot measures how chemical safety in the partner countries can be improved and sustainably implemented in line with international standards. With this objective the development of a Chemical Management Guide (CM Guide) for small and medium-sized enterprises in developing countries has been initiated. The guide describes a step-by-step approach which is based on identifying hot-spots as a first step, and making a chemical inventory as a second step. The third step is the continuous improvement of chemical management. In total, there are six tools that aim to support the chemical management process: basic concepts for risk assessment; description of control approaches; using material safety data sheets (MSDSs); risk phrases for hazardous substances; safety phrases for hazardous substances; symbols used for labelling hazardous substances. In the course of the test-implementation of the CM Guide in Indonesia, it was found that MSDSs were not available in most of the smaller companies. In contrast, medium-sized and larger companies do have more MSDSs available. It was also found that the way to engage the minds of company owners and managers is with economic arguments related to the loss, waste and expiry of materials, and quality standards expected from importing countries. Keywords: chemical management; control banding; developing countries; small and medium-sized enterprises BACKGROUND The best laws and international agreements on chemical safety are of little use if there are no institutions and experts in the developing countries to implement them. Two such agreements are the Rotterdam Convention (2002), which deals with international trade in certain hazardous chemicals, and the Stockholm Convention (2001), which prohibits or limits *To whom correspondence should be addressed. E-mail: tischer.martin@baua.bund.de Chemical control in small and medium enterprises: control banding and other approaches. Papers from a meeting in London, November 2002. Guest Editor: Paul Evans. the release of certain persistent organic pollutants. In support of these, the Deutsche Gesellschaft für Technische Zusammenarbeit (GTZ, a government-owned corporation under private law), launched in 1998 the Convention Project on Chemical Safety (Adelmann, 2001). Funded by the German Federal Ministry for Economic Co-operation and Development (BMZ), this project and its activities are performed in coordination with the Federal Environmental Ministry (BMU). The aim of this project is to support developing countries and countries with economies in transition to implement the Rotterdam and Stockholm Conventions, create human resources and institutional capacities in the context of the Conventions and to demonstrate via pilot measures how chemical 571

572 M. Tischer and S. Scholaen safety in the partner countries can be improved and sustainably implemented in line with international standards. The project has the capacity to respond directly to enquiries from partners in governmental and nongovernmental organizations. Currently, it is supporting regional activities in Latin America and Africa, and directly co-operating with national partners in Argentina, Mexico, Paraguay, Ghana, The Gambia, Zambia, China, Thailand and Indonesia. In this paper, the results are presented from activities that aim at the improvement of chemical management in small and medium-sized (SMEs) enterprises in Indonesia. With this objective the development of a Chemical Management Guide (CM Guide) that can be used in Indonesian companies and in other developing countries has been initiated. The CM Guide should convince companies that sound management of chemicals can reduce costs related to production, increase product quality and reduce risk to workers health and the environment. The CM Guide has been developed and financed by the GTZ Convention Project for Chemical Safety in collaboration with ProduksiH component of the Indonesian German Environmental Programme (ProLH), the German Federal Institute for Occupational Safety and Health (BAuA) and the Pilot Programme for the Promotion of Environmental Management in the Private Sector of Developing Countries (P3U). The concepts presented in the CM Guide have been verified and test implemented in Indonesian factories by an international team consisting of representatives of the above-mentioned projects, institutions and the partner organization BAPEDAL (National Environmental Protection Agency of Indonesia). BAuA has supported CM Guide activities with regard to all occupational safety and health aspects. At the time the ILO Safework Chemical Control Toolkit (ILO, 2001) was already available. Since the ILO Toolkit was regarded as an ideal building block for chemical management, it was introduced into the CM Guide. The Toolkit is designed for SMEs in developing countries. It has been developed by a team of occupational hygienists assembled by the International Occupational Hygiene Association (IOHA). In essence, the Toolkit considers the exposure potential and the health hazard of the chemical to generate a set of control strategies that reduce exposure to levels which present no danger to health. In order to keep the scheme easy to use and understand, hazards and exposure potential are classified into groups. Hazards (represented by R-phrases) are categorized by five hazard bands. Exposure potential is similarly categorized by simple descriptors: three for amount used (small, medium, large) and three for dustiness or volatility (low, medium, high). These factors hazard, amount, and dustiness or volatility can then be combined to select one of four control approaches: general ventilation; engineering control; containment; special (when specialist advice is needed). The controls are described in control guidance sheets, which comprise both general information and, for commonly performed tasks, more specific advice. BASIC IDEAS OF THE CM GUIDE Chemical management refers to a number of practical measures that enterprises can undertake on their own to improve their productivity, obtain cost savings and improve organizational procedures as well as workplace safety and environmental performance. Thus, it is a management tool for cost management, environmental and occupational hygiene management, and organizational change. When these areas are adequately taken into consideration, a triple win can be achieved and a successful process of continuous improvement in the company can be established (Fig. 1, based on GTZ, 2003). First, companies can achieve cost savings through reduction and improved use of chemicals. Secondly, Fig. 1. Institutional learning and the triple win triangle of chemical management in enterprises (adapted from GTZ, 2003).

Chemical management and control strategies 573 they can achieve organizational improvements, as the implementation of a chemical management system requires internal communication and sets clear responsibilities (institutional learning). This leads to organizational benefits in the longer run. Thirdly, they can improve their situation regarding occupational safety and health. This triple-win strategy was chosen because it is impossible to get the companies motivated to change their situation if only occupational safety and health or environmental aspects are addressed. In other words, when workers or the environment simply do not count for companies, and little government control exists, there is not much motivation on the part of companies to undertake chemical management. METHODOLOGY OF THE CM GUIDE Fig. 2. Hot spots. In order not to overstrain the companies financially and technically, a step-by-step approach was developed. The first step is to identify hot spots (for definition see Fig. 2) with the aim of improving the most obvious lossmakers in the production process. The second step is the elaboration of a detailed chemicals inventory. This gives the companies the chance to get their whole house in order, identify redundant products, unknown substances, expired chemicals or very toxic substances. The third step is the continuous improvement of chemical management, evaluating the actions undertaken, communicating and rewarding results, monitoring results and establishing new targets. The stepwise implementation method of the guide is supported by the provision and description of six tools: basic concepts for risk assessment; description of control approaches; using material safety data sheets (MSDSs); risk phrases for hazardous substances; safety phrases for hazardous substances; symbols used for labelling hazardous substances. Based on the ideas outlined above, a draft version of the CM Guide was developed and tested in practice. First experiences from a test implementation of this approach in five Indonesian SMEs are presented below. These experiences provide insight into the obstacles that companies typically face in undertaking chemical management. RESULTS In Indonesia there are a large number of companies in sectors with intensive use of chemicals in the production process, e.g. tanning industry, textile industry and paper industry. In September 2001 a team of international and local experts visited three textile-processing companies, one tannery, and one paint producer and drum recycler (Miller, 2001). Table 1 gives an overview of the companies that participated in testing the CM Guide. The initial visits lasted up to 4 h and included extensive discussions with the owner and a detailed walk-through of the enterprise to identify hot spots (see Fig. 2) with regard to chemical management. In every company it was possible to observe and directly address the workers in order to understand how operations are typically carried out. The observations made in the textile-processing enterprise are typical for most of the companies visited. The company operates as a job shop, dyeing and printing towels for both export and the local market. Towel printing is carried out by using solvent-based printing pastes. Since no local exhaust ventilation was applied to the printing process, workers were generally exposed to solvent vapours. Some of the workers in fact complained of headaches and tried to protect themselves by breathing through a cotton cloth. The manager stated that petrol is used as a solvent. Petrol is allocated to hazard band B in the ILO Toolkit and is handled in litre quantities, so according to the Toolkit local exhaust ventilation Table 1. Sector, characteristics and sizes of selected enterprises during a test implementation of the CM Guide in Indonesia, 2001 No. Sector Characteristics of production Size of enterprise 1 Tannery 50% domestic, 50% exported; chemicals 150 employees; medium sized are 30% of cost of production 2 Paint producer and drum recycler Produces 15 20 tonnes/month, all sold on domestic market 10 workers (varies); small-scale family business 3 Textile (synthetics) 30% domestic, 70% exported 1400 employees 4 Textile (dyeing) 30% domestic, 70 exported 150 employees; medium-sized 5 Textile (cotton) Domestic and exported 1500 employees; large scale

574 M. Tischer and S. Scholaen should be applied to the printing process. Although the manager knew that petrol was used as a solvent he did not know anything about its hazardous properties as no MSDS was available. In the dye kitchen of the company hundreds of chemicals were stored, available on demand. In this area the worker removes the amount given in the recipe from the dye container, weighs it on scales and feeds it into the mixing vessel. This area was found to be badly soiled and no local exhaust ventilation was applied, although there were chemicals in stock that belong to hazard band C, according to the ILO Toolkit, including sensitizing dyestuffs from European suppliers, with MSDSs. But MSDSs were lacking for most of the chemicals in use. During the visits it became clear that the primary information (MSDS, product labelling) needed to carry out risk assessment was not available in most of the smaller companies. The reasons included: Companies purchase low-cost/low-quality chemicals from local suppliers who do not adequately label with internationally recognized risk phrases; nor do they routinely include MSDSs with products supplied. Companies purchase time-expired chemicals where labels from international suppliers are purposely blacked out to prevent resale, etc. Companies claim that MSDSs are not available in the local language (Bahasa Indonesia). In other words, small companies in general are not in a situation to apply sophisticated risk assessment because they have insufficient infrastructure and the information necessary for the risk assessment process (MSDSs) is lacking. Smaller companies also face the absence of systematic organizational procedures and documentation, lack of priority and responsibility given to managing chemicals, and limited financial and human resources. These companies expressed an interest in simple criteria for identifying hot spots and rules of thumb to reduce losses of chemical materials. They need to see that they can achieve benefits in a short time-frame if they are to be convinced that putting efforts into such an activity will be worthwhile. On the other hand, it was observed that mediumsized and larger companies do have more MSDSs on hand, but they typically do not understand the importance of having them and do not know how to use this documentation. Furthermore, most of the larger companies do provide personal protective equipment (PPE) and some workers even use it. However, the design is often insufficient to offer adequate protection. In some instances, workers have made their own face masks or wrap towels around their face, but there is very little understanding of potential health effects due to exposure to chemicals. Hence, in medium-sized and larger enterprises there is a great potential for concepts like risk assessment and the ILO Toolkit. In these companies a minimum of preconditions to work on chemical management exists and there are also the internal structures needed for the implementation of new measures. There is also an expressed need for help on chemical management as well as some motivation to improve the performance. For example, some of the larger companies are going to implement the ISO 14000 standard for environmental management systems (EMS). Since ISO 14000 is an accepted standard this makes the company more competitive on the international market. Many of the activities required for ISO 14000 are aimed at reducing the use and emission of chemicals. Thus, companies that are working to achieve certification under ISO 14000 will also gain synergies regarding occupational safety and health During the visits, company management showed only polite interest in chemical issues related to occupational safety and health. As there is limited legislation and enforcement in this area and therefore limited incentive for action and few penalties for non-compliance companies are not inclined to take action to improve occupational standards, particularly if this involves a cost outlay. It was clear that the only way to enter the minds of company owners and managers is with economic arguments related to the loss, waste and expiry of materials, and quality standards expected from importing countries. They understand negative effects on their products and production quality, and the loss of productivity due to absenteeism of workers (and need for replacement) related to health effects and accidents. DISCUSSION To make the CM Guide applicable for both SMEs and larger enterprises, a step-by-step approach was chosen. This enables the companies to implement improvement in a continuous way, without making too many changes at one time, and to move in the direction of continuous improvement. The first step is to identify hot spots, places where inefficient storage, handling and use can be observed, and where improved practices could give cost savings, or where, due to the handling of chemicals, particularly highrisk situations may occur (and where potential harm should be reduced immediately through the implementation of appropriate control measures). The first step is especially appropriate for smaller companies that have given little attention to managing chemicals. The second step involves systematically identifying all chemical substances stored and in use and creating a structured chemical inventory table. Once a comprehensive chemical inventory is completed,

Chemical management and control strategies 575 this can be used as a benchmark for making improvements on a continuous basis. This step is appropriate for companies that have already undertaken some actions to optimize the use of chemicals. The steps outlined above provide the information for the third step, that aims to calculate losses, consider substitutes, and determine and evaluate adequate controls on the basis of the ILO Toolkit. It must be noted that it is especially difficult to get small companies to implement any concept, tool or new initiative. When pressed to act, the companies react by arguing that they first need proof that there will be beneficial results. This might be due to the fear that improvements will be costly. To overcome this obstacle, the initiative collects success stories from factories and integrates them into training measures. Experience has shown that companies, once convinced of the benefits, even implement measures not directly related to chemical management, but which reduce production costs and benefit the environment (e.g. water- and electricity-saving activities). OUTLOOK In order to disseminate knowledge of the guide and to provide sustainability, the Convention Project on Chemical Safety, together with ProduksiH project in Indonesia, has planned three implementation workshops for consultants, local companies and potential implementing agencies in different regions of Indonesia. The results of these workshops will be available soon. Furthermore, the guide has been translated into Spanish and French. In May 2003, an implementing workshop was held with the Superintendencia de riesgos de trabajo of the Ministry of Labour in Buenos Aires, Argentina, and another workshop is planned for Vietnam towards the end of 2003. REFERENCES Adelmann K. (2001) Chemical safety and development. Bonn: GTZ Pilot Project Chemical Safety. GTZ. (2003) Pilot programme for the promotion of environmental management in the private sector of developing countries (P3U). Profitable environmental management (PREMA). Bonn: Deutsche Gesellschaft für Technische Zusammenarbeit. ILO. (2001) Draft ILO chemical control toolkit. Geneva: International Labour Organization. Available at http://www.ilo.org/safework. Miller J. (2001) Report on Chemical Management Mission Indonesia, for Component G3 of the Indonesian German Environmental Program and Convention Project Chemical Safety. Bonn: Deutsche Gesellschaft für Technische Zusammenarbeit Miller J, Tischer M, Vosseler C. (2002) Chemical management guide improve chemical management to gain cost savings, reduce hazards and improve safety. Bonn: Convention Project on Chemical Safety, Deutsche Gesellschaft für Technische Zusammenarbeit. Rotterdam Convention. (2002) The Rotterdam Convention on the prior informed consent procedure for certain hazardous chemical and pesticides in international trade. United Nations Environment Programme. Text available at http://www.pc.int/. Stockholm Convention. (2001) Stockholm Convention on persistent organic pollutants. United Nations Environment Programme. Text available at http://www.pops.int.